Schools: Mental Health Support

Lord Agnew of Oulton Excerpts

Tuesday 27th November 2018 Lords Chamber

[Lord Storey]

To ask Her Majesty’s Government what steps they are taking to develop mental health support in schools.

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, many schools already promote their pupils’ mental health and we are providing significant new support to them. In July, we confirmed our commitment to train mental health leads in schools to develop whole-school approaches to promoting and supporting good mental health. But schools cannot act as mental health experts, so we will also provide increased specialist support from new, clinically supervised mental health support teams.

[Lord Storey (LD)]

I am grateful for the Minister’s reply. He will be aware that 65% of children and young people who have mental health problems currently get no support. I am aware of the trailblazers but they will take time to be established and teach good practice. We have a resource in schools which, sadly, is underfunded. It has too many vacancies and spends all its time on its statutory responsibility of reviewing cases under the Children and Families Act—I mean, and thus mention, our educational psychologists. Why can we not provide extra resources so that educational psychologists who are in post can do this work to provide support for children and young people with mental health problems?

[Lord Agnew of Oulton]

My Lords, we are improving specialist children’s and young people’s mental health services with our £1.5 billion investment from 2015. We recognise that we need to do more, which is why the NHS will invest at least £2 billion a year in mental health, including children’s services, under the recent Budget proposals. Our Green Paper proposals are about providing support quickly through teams directly linked to schools and testing four-week waiting times for more specialist follow-up. We are absolutely not complacent about this vital area.

[The Countess of Mar (CB)]

My Lords, frequently children with ME are diagnosed as having a mental health problem at school, which leads them into child protection proceedings. Can the Minister please ensure that the people responsible are aware of the fact that ME is not a mental health condition so that these children are not treated as mental health patients?

[Lord Agnew of Oulton]

My Lords, that is the reason why we are rolling out mental health training in schools. Since April last year, we have already trained 1,300 teachers across 1,000 schools to increase awareness of subjects such as the one the noble Countess raises.

[Baroness Massey of Darwen (Lab)]

My Lords, I understand that the number of school nurses and counsellors has dramatically decreased over the past few years. Can the Minister confirm this? What is the role of school nurses and counsellors, or do they no longer have one because they have disappeared?

[Lord Agnew of Oulton]

My Lords, it is up to individual schools to deploy their resources as they see fit. Where school counsellors provide an important role, I am sure they are used, but as I said in answer to the supplementary question asked by the noble Lord, Lord Storey, we are deploying more resources into this area in schools.

[Lord Polak (Con)]

Is the Minister aware that the Jewish Leadership Council has just launched a scheme to improve mental health in schools? Trained counsellors/well-being practitioners are being recruited to five schools—two primary schools, Rimon and Broughton Jewish, and three secondary schools, JFS, JCoSS and Yavneh College—for a three-year pilot. Will the Minister join me in congratulating Yavneh College, Spencer Lewis, the head teacher, and the staff as, according to the Sunday Times, it has just been announced as the best performing non-selective school in the country?

[Lord Agnew of Oulton]

My Lords, many faith schools are high performing and achieve consistently high exam results. I am happy to join my noble friend in congratulating Yavneh College. Many of the best schools focus on well-being as an intrinsic part of their job, so I welcome the initiatives highlighted by my noble friend. Promoting well-being can help prevent problems arising or escalating, ensuring that both the school and pupils are provided with the tools they need to achieve the best results.

[The Lord Bishop of Worcester]

My Lords, while I am grateful for the increased funding that is now available for mental health services for young people, is the Minister aware of the real difficulties facing young people in a crisis situation? I am thinking of a 14 year-old who asked his father to take him to the GP because he was afraid he might do something silly. The GP sat and listened very sympathetically, but then said, “I’m afraid there’s very little I can do for you. If I give you a referral to CAHMS, you probably won’t get an appointment for a year”. Is that not a crisis situation?

--- Later in debate ---

[Lord Agnew of Oulton]

My Lords, there are always going to be individual incidents such as that, and that is why we have made such a big commitment to increasing mental health funding over the few next years, including for children’s mental health. As I mentioned in answer to an earlier question, improving awareness of mental health issues, such as the trauma just mentioned by the right reverend Prelate, will help us deal with these cases.

[Lord Addington (LD)]

My Lords, does the Minister agree that having a few people trained in every school does not mean you will get throughput unless you have basic awareness among the staff? That can be achieved only by continuous professional development structured in an awareness package, so that you get to the people you are training.

[Lord Agnew of Oulton]

My Lords, we are introducing mental health training as part of teacher training. We are beginning a voluntary scheme in September next year, and that will become a compulsory part of teacher training programmes. Returning to the earlier point about funding, we aim to add another 8,000 mental health professionals to the system over the next few years.

[Baroness Boycott (CB)]

My Lords, may I add another element to this vital debate? It is about all schools having a school garden. I shall quote from a recent report by the King’s Fund:

“The mental health benefits of gardening are broad and diverse. Studies have shown significant reductions in depression and anxiety”,


and “improved social functioning”. This costs unbelievably little, and lessons can be based around it. In my time running the London Food Board, I put many gardens into London schools, and the effects were dramatic. The cost is as little as 50 quid—with a bit of volunteering—and it has a permanent, long-term effect.

[Lord Agnew of Oulton]

I strongly support the noble Baroness’s comments on children’s exposure to outdoor activities. There is a very good trust, the Country Trust, which takes children on to farms in the same spirit as just mentioned. I think this is enormously important. I am the Minister responsible for the disposal of land in schools, and I intervene weekly to ensure that land used for such outdoor pursuits is not disposed of.

[Baroness Symons of Vernham Dean (Lab)]

My Lords, does the Minister not realise that the answer he gave to the right reverend Prelate about it taking a year to get help for a child in need was extraordinarily disappointing? Can nothing be done to deal with these urgent cases, about which the right reverend Prelate made such a persuasive point?

[Lord Agnew of Oulton]

My Lords, we are committing to and experimenting with much shorter waiting times in the NHS to bring that down to four weeks. The rollout of the trailblazers will be in exactly the same spirit: to learn best practice, which we can then adopt across the whole system.

Further Education Bodies (Insolvency) Regulations 2018

Lord Agnew of Oulton Excerpts

Monday 5th November 2018 Lords Chamber

Tabled by

[Lord Agnew of Oulton]

That the draft Regulations laid before the House on 5 September be approved. Considered in Grand Committee on 30 October.

[Viscount Younger of Leckie (Con)]

My Lords, in the absence of my noble friend Lord Agnew, I beg to move the Motion standing in his name on the Order Paper.

Children: Welfare, Life Chances and Social Mobility

Lord Agnew of Oulton Excerpts

Thursday 1st November 2018 Lords Chamber

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, I congratulate the noble Baroness, Lady Massey, on securing this important debate. I am grateful for this opportunity to set out the Government’s actions to improve children’s social mobility and life chances through early intervention. We have had many serious contributions today and I will attempt to answer the many questions that have been raised, but if I am not able to answer them all I will, of course, write to any noble Lords I have missed.

The Government are committed to early intervention and building the evidence base to underpin it. Early intervention means effective prevention, identification and evidence-based intervention across multiple professions, which places the child at the centre. The noble Baroness, Lady Massey, and the noble Lord, Lord Watson, are right that early intervention saves money and saves wasted lives. We can all agree on that. I welcome my right honourable friend Andrea Leadsom’s ministerial working group, which will review how to improve the support available to families in the first two years of a child’s life. Early intervention is a cross-government concern.

Research suggests that there are short and long-term educational and socioemotional benefits of attending early childhood education and care. This Government have prioritised investment in early education. This includes 15 hours of free early education per week for all three and four year-olds and an additional 15 hours per week for three and four year-olds of working parents. Since 2013 we have invested over £2 billion in early education for disadvantaged two year-olds and nearly 750,000 children have benefited from this. I take on board the comments of the noble Baroness, Lady Morgan, about the high salary entitlement that can trigger this support and I will certainly refer this to the Treasury for the next spending review.

The noble Baroness, Lady Bull, and the noble Lords, Lord Watson and Lord Russell, asked questions on early years and I hope I will be able to address their points. The noble Lord, Lord Russell, asked what assessment will be made of whether new spending on preschool children is improving social mobility. The free entitlements are just one part of the overall package for social mobility in the early years. We announced a range of initiatives to support disadvantaged children in our social mobility action plan, Unlocking Talent, Fulfilling Potential, investing £100 million across early years programmes, and we will be evaluating the impact. To answer the question of the noble Lord, Lord Watson, we are in the process of raising a tender exercise for that at the moment.

We are determined to close the gap between disadvantaged children and their peers and the early years are crucial to getting this right. The gap for children achieving a good level of development continues to narrow, from 19 percentage points in 2013 to 17 percentage points in 2017. We continue to monitor the progress of children in early years through the publication of the early years foundation stage profile. The study of early education and development also began in 2013 and is following almost 6,000 children between the ages of two and seven to understand the benefits of early education and care in England.

The noble Lord, Lord Watson, asked that we ensure that nursery settings are led by someone with a relevant degree-level qualification. We recognise the importance of having a highly skilled early years workforce. Recruiting graduate early years teachers into the private, voluntary and independent early years sector remains a challenge, despite significant investment by successive Governments since 2006. It is therefore important that we consider complementary approaches to developing the skills of the early years workforce. This is why, as announced in the social mobility action plan, we will be investing £20 million in early years professional development activity in disadvantaged areas. We remain committed to ensuring that there are routes to graduate-level qualifications into the early years sector, as well as the existing early years initial teacher training programme that offers funded places and bursaries. We will also be developing apprenticeship pathways, enabling those in the early years workforce to progress up to a graduate-level qualification.

The noble Baroness, Lady Bull, asked how we will prioritise the potential for the early arts as a method of learning. Expressive arts and design is one of the seven areas of learning in the early years foundation stage. It provides a framework for teachers to assess how children’s artistic, creative and imaginative development is progressing, reflecting the importance of creativity in the early years. Expressive art and design is one of the most important ways for a young person’s mind to develop. I reassure all speakers today that the Government are focused on that.

The evidence is clear that the home learning environment is one of the biggest influences on a child’s vocabulary at the age of three and that its quality varies depending on socioeconomic and other factors. We are committed to supporting parents to improve the quality and quantity of adult-child interactions to help unlock the power of learning in the home. That is why we are holding a summit this month where we will convene businesses, broadcasters and a broad range of other organisations to launch a coalition to explore innovative ways to boost early language development and reading in the home. We recognise the importance of growing the evidence base and are working with the Education Endowment Foundation on a £5 million trial of evidence-based home learning support programmes in the north of England.

Local authorities sit at the heart of delivering effective early intervention services. We want to support this, which is why we are working with the Local Government Association to develop our early years local government programme, which is worth £8.5 million. The programme focuses on improving how the local services that work together to improve children’s outcomes in the early years are delivered, with a particular focus on early language. Children’s centres have an important role to play, but it is right that local councils continue to decide how to use them as part of their wider system of local services.

The noble Lords, Lord Loomba and Lord Touhig, and the noble Baroness, Lady McIntosh, all mentioned the importance of early intervention. Good-quality relationships between parents are critical for child outcomes. The reducing parental conflict programme will support all local areas to embed parental-conflict support into wider services for children and will work to ensure that evidence-based interventions are more widely available. We know that alcohol misuse can severely impact on parental conflict, which is why we are investing £6 million to improve the outcomes of children of alcohol-dependent parents.

We have committed over £920 million to the troubled families programme from 2015 to 2020. This focuses on preventive services and aims to achieve significant and sustained improvement for up to 400,000 families with multiple high-cost problems by 2020. The programme, delivered through local authorities and their partners, advocates a whole-family integrated approach across multiple services.

In addition to targeted work, we have national health programmes that support early intervention. These include the healthy child programme, which aims to identify issues early. It is led by health visitors and includes five mandated health reviews, advice, guidance and support to improve outcomes and to support the families of children from birth to five years. Building on this, my department is working in partnership with Public Health England to equip health visitors to support families with early language in the home and ensure that any speech delays are picked up early and the right support put in place.

Engagement with maternity services may be the first time that a woman experiences regular and in-depth interaction with the health and care system. The maternity workforce is well placed to support the long-term health and well-being of women and their babies. In March 2018 we announced a pledge to give the majority of women continuity of care from the same midwives throughout their pregnancy, labour and birth by 2021. The maternity transformation programme led by NHS England is leading system-wide activity to improve well-being, reduce risk and tackle inequalities from the preconception period through to eight weeks after birth. The Government are also investing £365 million between 2015 and 2021 in perinatal mental health services to improve outcomes for mothers and children.

There has been a tremendous focus on children’s mental health from speakers today. The noble Baroness, Lady Young, and the noble Lords, Lord Haskel and Lord Touhig, all raised this important area. One important initiative is Public Health England promoting local adoption of what is known as the prevention concordat for better mental health, which focuses on galvanising action to prevent mental health problems and promote good mental health in all local areas. The design is consciously cross-sector so that professionals from a diverse spectrum of organisations can engage and play their part.

The noble Baroness, Lady McIntosh, asked about the amount of financial capacity in the system. We have announced a package of some £300 million for children and young people’s mental health: £215 million from the Department of Health and Social Care for mental health support teams and £95 million in DfE funding for training designated senior leads for mental health in schools.

The noble Baroness, Lady Young, asked about the impact of outdoor schools on mental health. I congratulate the noble Baroness on her involvement in this area. There is no doubt that exposure to open countryside has an enormously positive impact on young people. The early years foundation stage picks up elements of attachment through personal, social and emotional development. As part of this stage, providers must provide access to an outdoor play area or, if that is not possible, ensure that outdoor activities are planned and undertaken daily. On a personal note, I am the Minister who deals with any application for disposal of land in schools, and I have made it very clear to all schools that apply to me that disposals are conditional on improvement of sporting facilities in those schools.

The noble Baronesses, Lady Massey and Lady Young, and the noble Lord, Lord Pendry, asked about obesity. I have to express a slight conflict of interest here: as a farmer who grows 3,500 tonnes of sugar beet a year I am slightly on the other side, but I absolutely support the obesity strategy, through which we aim to take 45 million kilograms of sugar out of the food system every year. It is absolutely clear to me that sugar is highly addictive: I am certainly one of its victims and I fight the addiction every day. The more we can do in the early stages for children, to remove that dependency on sugar, the better. It astonishes me that you can buy fizzy drinks in supermarkets for less than you pay for bottled water.

We want to support all young people to be happy, healthy and safe. This is why we are making relationships education compulsory in all primary schools, relationships and sex education compulsory in all secondary schools, and health education compulsory for primary and secondary state-funded schools. In health education, there is a focus on avoiding the damaging effects and risks of drugs and excessive alcohol. The Government are committed to supporting the life chances of children who need particular support from the state. Children in need and looked-after children fall behind from the early years, and these poor outcomes are entrenched throughout childhood and adolescence.

Since the Munro review of child protection in England, which highlighted that the use of evidence is fundamental to social work, the Government have prioritised innovation, learning from evidence and best practice. We have invested almost £200 million since 2014 in the children’s social care innovation programme to develop, test and spread innovative new ways of supporting vulnerable children and improving their outcomes. Through the children in need review, we are building the evidence on what works to improve the educational outcomes of children in need, both in and out of school. We are seeking to understand why their educational outcomes are so poor and what needs to be in place to achieve consistently better educational outcomes.

The noble Baroness, Lady Young, asked about the impact of funding on social care demand. The drivers of demand are complex: for example, the sector-led care crisis review found many overlapping factors contributing to the rise in care proceedings and children entering care. There is not a uniform picture but instead, significant variation. We have invested almost £270 million since 2014 to help local authorities learn from what works and to support improvements. We have invested in the Early Intervention Foundation to help build evidence in early intervention strategies. We have invested £10 million since 2014 in the What Works Centre for Children’s Social Care to improve the evidence base in children’s social care, with the aim of translating this into better practice. In the autumn Budget the Government announced £84 million in targeted, evidence-based interventions, with the aim of reducing demand and saving money for local authorities. Most importantly, this is about improving the quality of services for our most vulnerable children.

Through our partners in practice programme, we are working with 20 of the best local authorities to deepen our understanding of what excellent children’s social care looks like and working with other local authorities to improve their practice through sector improvement support. A number of speakers asked about this. The noble Lord, Lord Russell, asked about the APPG. I give recognition to the noble Baroness, Lady Tyler, as co-chair of the APPG for Children’s report, Storing Up Trouble. Since 2010, 45 of what were previously inadequate local authorities in which we have intervened have left inadequacy behind and not returned. This is not intervention for intervention’s sake but improving the lives of children and families. Recently we have gone further, investing £20 million in regional improvement to get ahead of failure.

Our partners in practice programme, which, by the way, has now grown to include 20 of our best authorities, is sharing and spreading excellence across the country. The APPG report recommends that the department works with the What Works Centre for Children’s Social Care and sector partners to evaluate new and developing approaches to meeting the needs of children and families. I am pleased to say that this is already happening. An early priority for the What Works Centre is to understand what works to safely reduce the need for children to enter care and to build our confidence that children are entering care only when that is the best option for them. There are promising signs emerging from our £200 million innovation programme.

On the question from the noble Baroness, Lady McIntosh, about the lack of capacity, since the 2015 spending review we have made more than £200 billion available up to 2020 for councils to deliver local services. This includes children’s services. Funding is important but so is how it is used.

My noble friend Lord Farmer mentioned the boarding school partnerships initiative. I am a huge supporter of this and tried very hard to raise its profile across government and, more importantly, across local authorities. Like my noble friend, I too was in a boarding school. My parents’ marriage collapsed and it was that stability and continuity that gave me the courage to continue my education. My noble friend raised the statistics that came out of the report, albeit a small one, from Norfolk. The figures are very powerful, particularly on outcomes—the percentage of children who came off the register as well as the overall cost. I am endeavouring to increase local authorities’ awareness of this. Almost 60 boarding schools have now committed to bursaries and to helping vulnerable children. My particular focus here is looked-after children who, as we know, get a very raw deal in life.

The noble Baroness, Lady Massey, asked whether I agree that the school system is vital in preparing the whole child, as I would describe a young person. The Government have invested more than £12 billion in the pupil premium over the last seven years, particularly aimed at the most vulnerable members of society. The Progress 8 measure is aimed very much at encouraging schools to lift up lesser-attaining pupils when they enter school. I accept that data can be somewhat dry, but from my business experience, what gets measured gets done. We are seeing some tremendous improvements in these areas.

I commend my noble friend Lord Baker for his passion for education and for everything he has done in his long career in politics. No Peer in this Chamber has spent more time in my office in the last year than my noble friend. I share his passion for technical education. We cannot always agree on everything, but I have tried very hard to help as much as I can. The UTC programme is important, dealing with a cohort of children who are clearly more suited to a technical education. I do not believe that the picture is as bleak as he paints: we now have the T-level programme, to which we are committing some £500 million a year. The EBacc programme, which I know is controversial in this House, is aimed particularly at those from less advantaged backgrounds whose ability to go to good universities is restricted.

[Baroness McIntosh of Hudnall]

My Lords, I know the noble Lord is coming to the end of his remarks, but I hope we have enough time for me just to say that it is not controversial in this House only; it is controversial at large. There are very many people who believe that the EBacc is misguided in the narrowness of its base.

[Lord Agnew of Oulton]

I accept that the noble Baroness says that it is controversial; we will have to agree to differ at this time. I would like to pick up on a slightly more positive issue that she raised in the debate on music and facilitating subjects the other day. I have spoken to two Ministers in the department since, and have agreed that we will write to some universities to test their appetite for adding music A-level to the facilitating subject range.

I apologise, I am running out of time, but I want to say I am very grateful to all noble Lords who have spoken today. All of you have shown great passion and expertise in this area. We all agree that early intervention is vital to promote children’s attainment, health and well-being through their lives. The Government, across departments, will continue to make progress on this agenda, to improve the life chances of this nation’s children, particularly those in the most need of support.

Health: Spectrum Conditions

Lord Agnew of Oulton Excerpts

Tuesday 30th October 2018 Lords Chamber

[Lord Addington (LD)]

My Lords, I beg leave to ask the Question standing in my name on the Order Paper, and remind the House of my declared interest as president of the British Dyslexia Association.

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, our data collections do not separate outcomes of dyslexia, ADHD and dyspraxia, so we are unable to make such an assessment. In terms of destinations, after completing key stage 4, for those with SEN, overall in 2016-17, 90% of pupils with a statement or education, health and care plan were in sustained education, employment or training compared to 88% of pupils with SEN without statements, and 95% of those without SEN.

[Lord Addington]

I thank the Minister for that reply. I have made him and his office aware of the document brought forward in February this year by Warwickshire Educational Psychology Service, called Teaching Children & Young People with Literacy Difficulties Practice Guidance, which is very similar to a document that appears on the Staffordshire site. This states that dyslexia effectively is not something to worry about. It effectively undermines the whole basis of the support which the noble Lord has been talking about. Will he give an assurance that the Government will make sure that accurate diagnosis, which can be life-changing, is maintained for this group because it helps through education and throughout life?

[Lord Agnew of Oulton]

My Lords, the document to which the noble Lord refers recognises that early identification and intervention is important to meet the needs of children and young people with literacy delays. On the necessity of a dyslexia diagnosis, I do not have expertise in such matters. However, the noble Lord and the British Dyslexia Association do, and I would encourage Warwickshire local authority to consider carefully its advice on this point, and on the document generally. I share the noble Lord’s frustration that it has not responded to the British Dyslexia Association’s letter written over two and a half months ago.

[Lord Winston (Lab)]

My Lords, I am astonished that the Government do not know the figures for the relative incidence of the spectrum disorders in schools. I declare an interest as a member of staff of Imperial College. Is the Minister aware of our programme where we have managed, hugely successfully, to encourage dyslexic students, in particular, to gain very high educational qualifications? But of course, if the condition cannot be identified, it is very difficult to do that.

[Lord Agnew of Oulton]

My Lords, I acknowledge the great work the noble Lord, Lord Winston, is doing. I am clear that early diagnosis makes a huge difference; it helps the self-esteem of the child in question, and also enables earlier interventions to take place, helping to establish that child on a strong educational pathway.

[Lord Forsyth of Drumlean (Con)]

My Lords, does my noble friend accept that dyslexia is an impairment that can result in substantial and adverse long-term effects on an individual and their ability to carry out normal, day-to-day activities, and therefore this report is in complete contrast to the legislation that this House has passed?

[Lord Agnew of Oulton]

My Lords, it is certainly not helpful that Warwickshire County Council is not engaging with the British Dyslexia Association. Under the Equality Act 2010, a person has a disability,

“if he or she has a physical or mental impairment and the impairment has a substantial and long-term adverse effect on his or her ability to carry out normal day-to-day activities”.

[Lord Watson of Invergowrie (Lab)]

My Lords, this is not a party-political issue, and I acknowledge that the Minister made time last week, along with the noble Lords, Lord Addington and Lord Storey, to discuss Warwickshire County Council’s guidance with me. That is why the Minister’s words today are disappointing, because I had understood that he accepted that this was an urgent and serious issue. Warwick County Council’s guidance to parents ignores the science and refuses to recognise that dyslexia is a medical condition. One wonders if, perhaps, it has also advised their residents that the earth is actually flat and that there is no such thing as global warming. With Cambridgeshire County Council and Staffordshire County Council considering aligning themselves with Warwickshire County Council’s position, I think it is important that the Government set out what action they will take to ensure that this misguided guidance is withdrawn as a matter of urgency.

[Lord Agnew of Oulton]

My Lords, I share the concern of the noble Lord, Lord Watson, and I have offered to write to Warwickshire County Council to understand why it has not responded to the British Dyslexia Association’s very detailed and well-written letter, sent two and a half months ago. As I said, we recognise the issue of dyslexia. Many children and young people who have SEN may have a disability under the Equality Act, and as I said, we strongly believe in early diagnosis and early intervention.

[Lord Sterling of Plaistow (Con)]

My Lords, my grandson—a splendid little boy—is on the spectrum. Only yesterday, we had a meeting with the Minister on the subject of early identification of this problem. There is no doubt about it: the earlier it can be identified the better for everybody, as it gives children a chance to participate in life in a normal way. What was lacking, as many of us here know, is child psychologists. Without many more child psychologists we do not have the ability to identify problems early, and I hope that the Minister, who I know has huge empathy for this subject, might hasten to add to that voice.

[Lord Agnew of Oulton]

My Lords, I am not sure whether the noble Lord, Lord Sterling, was referring to dyslexia or autism, but he will be aware that we have increased awareness among all schools, and encouraged teachers to increase their awareness. With the Autism Education Trust, for example, we have rolled out a lot of autism awareness training. We now have 190,000 people trained in autism awareness, which is up from 150,000 in June of last year.

[Lord Storey (LD)]

My Lords, the Minister will recall that during Children and Families Act, the local offer required local authorities to give information about special needs provision, and that information has to be accurate. Does the Minister not agree that it is not helpful to parents when false information is given out by councils, particularly on this issue of dyslexia? Will the Government clarify whether they fully support the recognition of dyslexia as a disability as defined by the Equality Act 2010?

[Lord Agnew of Oulton]

My Lords, the Equality Act 2010 provides protection for any person with a condition that meets the Act’s definition of disability—that is, a physical or mental impairment which has a substantial and long-term adverse effect on a person’s ability to carry out normal day-to-day activities. The Act does not, except in a few specific instances, mention by name the conditions that automatically fall within the definition of disability. This is because, in most cases, it is the impact on the person’s life that is the qualifying criterion, rather than the condition itself.

Greater Manchester Combined Authority (Adult Education Functions) Order 2018

Lord Agnew of Oulton Excerpts

Tuesday 30th October 2018 Lords Chamber

Moved by

[Lord Agnew of Oulton]

That the draft Orders laid before the House on 23 July be approved. Considered in Grand Committee on 24 October.

Motions agreed.

Further Education Bodies (Insolvency) Regulations 2018

Lord Agnew of Oulton Excerpts

Tuesday 30th October 2018 Grand Committee

Moved by

[Lord Agnew of Oulton]

That the Grand Committee do consider the Further Education Bodies (Insolvency) Regulations 2018.

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, these regulations were laid before the House on 5 September. In the Technical and Further Education Act 2017 we introduced a special administration regime for the further education sector. This included provisions for insolvency in the rare instances that it might be needed. It has been some time since we have discussed further education insolvency in this place and it is worth taking the time to set out some context for the benefit of those less familiar with this regime and the primary legislation.

Colleges are statutory corporations but operate independently of government. They have the ability to raise debt funding in the same way as a commercial body, through bank or other lending, although they are not for profit. A financially resilient further education sector requires strong leadership and an efficient structure to operate in. Since 2015, we have been working with the sector to strengthen that leadership.

Additionally, through a programme of area reviews, we have supported the restructuring of the sector so that colleges can meet the needs of learners and employers in their area as efficiently as possible. The Government have supported the sector to share best practice and to help weaker colleges to improve and raise standards. Coupled with the FE strategic leadership programme offered by the Education and Training Foundation, the aim is to drive up professional standards in the sector to help colleges to improve quality and become better equipped to deliver sustainable provision serving local needs. The Government also provided access to a restructuring facility, set up in 2016, to support the implementation of recommendations that came out of the area reviews. As that work is coming to an end, the restructuring facility closed to new bids at the end of last month.

Although we are seeing merged colleges and more robust arrangements developing as a result of the area reviews, we cannot guarantee that no college will fail in the future. We recognised that we needed a suitable mechanism in place to deal with colleges in an orderly manner if they should fail in the future. Therefore, in 2016 the Government announced that they would develop an insolvency regime for the sector. This includes a special administration regime with the objective of avoiding or minimising disruption to the studies of existing students of the FE body as a whole, while ensuring that the education administration is no longer than it needs to be—thus it benefits both students and creditors of an insolvent college.

The main provisions for the regime are in the Technical and Further Education Act 2017. The legislation provided clarity on whether and how insolvency law applies to FE bodies. The new regime ensures that there is an orderly process in place for managing a college insolvency. It also introduces, in the unlikely event that a college should become insolvent, a special administration regime known as education administration, which prioritises the protection of learner provision. Once commenced, the regime will give the Secretary of State the power to apply to court for an education administration order, appointing an education administrator. This could happen as a result of a creditor taking insolvency action of its own, in which case the Secretary of State can use his powers to put in place a different form of insolvency proceeding to protect provision for learners. Alternatively, he may be persuaded that the FE body is insolvent and that an application to court for an education administration order is the best course of action.

The 2017 Act applied certain provisions of insolvency law to the FE sector subject to modifications set out in the Act and specified in the regulations that we are considering today. These regulations modify insolvency legislation as it applies to FE bodies, both in the Insolvency Act 1986 and in wider legislation that concerns insolvency, to make it work effectively for further education bodies.

I also draw the Committee’s attention to the fact that there will need to be another piece of secondary legislation enacted before the special administration regime can be commenced. This will be a statutory instrument setting out the rules that apply to the education administrator’s conduct of an education administration. That instrument will follow the negative procedure. The insolvency regime provides the framework for insolvency practitioners to work within when dealing with the further education sector and specifies how education administration can be used to protect provision for existing learners at a college in financial distress. It is not the purpose of this legislation to seek to close colleges. It is a necessary tool to deal with the worst-case scenario, as the hard edge of a broader intervention system providing a structured and measured approach to preventing and responding to failure.

Colleges enjoy a high degree of financial independence, and it is right that they should be responsible for the decisions they take. This wider intervention system will start with the monitoring of colleges that are experiencing difficulty. If things get worse, then there will be a wide range of intervention tools. The insolvency regime is the mechanism of last resort, and we would expect it to be used only rarely. I wish to be clear that, where a college becomes insolvent, it will not necessarily lead to provision being closed. The aim would be to deliver the best scenario for the local area in the manner that is least disruptive for the learners at the college.

I turn to the purpose of this legislation. The draft regulations before the Committee today are quite technical. Their main purpose is to modify provisions of the Insolvency Act 1986 and to have legislation made under those provisions apply effectively to college statutory corporations. This not only ensures that a regime works technically, it also deals with practical issues to allow for the fact that FE bodies are autonomous and will have different provisions within their instrument and articles of governance. Therefore the regulations make provisions to manage insolvency proceedings in a standard way. These regulations also set out provisions for filing documents with Companies House, so that insolvency procedures are transparent for further education corporations, as they are for companies.

The role that the governors play in the UK education system is a crucial and well-established one. They bring a wealth of outside experience and knowledge to the sector. They are, rightly, already subject to important duties and liabilities as trustees of a charity and should already be well used to the responsibility that these duties bring. Governors should respect good practice, following proper process and ensuring that they take and carefully consider appropriate professional advice before taking key decisions.

The regulations have been drafted purposely to exempt student governors from certain offences and duties normally contained within insolvency legislation. The Government took the view that there would be some situations where student governors could not possibly have a meaningful say in decisions that gave rise to particular offences. It follows that it would not be right to expose them to liability for those offences. It is common for student governors under the age of 18 to be excluded from voting on decisions by the board that have financial outcomes. We have taken the view that if they cannot have a say in financial decisions, they should not be liable for offences linked to those decisions. Equally, student governors should not have to prepare a statement of the affairs of the college corporation, which includes a summary of the corporation’s assets and liabilities and details of its creditors—details that they might not be expected to be privy to. However, let me be clear that there is an onus on all governors—student members, staff members and other governors alike—to co-operate with the insolvency practitioner appointed by the court. This includes not making false statements when they are required to supply evidence of events.

I turn to the more technical detail of the regulations that we are considering today. Part 3 of the regulations modifies provisions of the Insolvency Act 1986 and the Insolvency (England and Wales) Rules 2016 as they apply to FE bodies that are statutory corporations. Part 4 of the regulations applies provisions of other legislation relating to insolvency to FE bodies, subject to modifications. For example, the Land Registration Rules 2003 need to be modified to enable the Land Registry to make an entry in the register that an administrator or liquidator has been appointed over a statutory corporation. Part 5 modifies provisions of the Companies Act 2006, applied to statutory corporations by Regulation 3, to ensure that they work effectively for FE bodies that are statutory corporations. This is to facilitate the correct filing of key insolvency documentation.

We carried out consultation on the position adopted in the regulations with insolvency practitioners, lenders, colleges and organisations that represent the sector. This included the Association of Colleges and the Sixth Form Colleges Association. The department has also worked hand in hand with Companies House and the Insolvency Service to ensure that these regulations work effectively for their intended purpose. The regulations apply to FE bodies and companies conducting designated further education institutions in England and Wales, and Welsh Ministers are fully supportive of the approach taken in the development of this legislation. I commend these regulations to the Committee.

[Lord Watson of Invergowrie (Lab)]

My Lords, I thank the Minister for introducing these regulations, which will bring a new college insolvency regime into effect by the end of the year. We believe that they are necessary and will not be opposing them, although we have some caveats that I shall bring to the Minister’s attention.

The Government are right to regulate in this area to bring more legal certainty, but we believe they should use the new powers only in exceptional circumstances because of the risk that they could damage confidence in an important sector. As I argued in Committee on what was then the Technical and Further Education Bill—before the noble Lord, Lord Agnew, was in your Lordships’ House—there is a danger that highlighting the need for a statutory insolvency regime that has not hitherto existed may alarm governors, banks, employers, international partners and others whose support is necessary to ensure that colleges provide the education and skills that the country needs. That is even more important now that the country is about to leave the EU and faces an uncertain economic future into the 2020s.

These regulations are technical and take a sensible approach to fitting out the structure of the legislation. The continuing underfunding of further education and the growing financial weakness of some colleges heightens concerns that the Government could unintentionally force a college into insolvency, with the serious consequences that that would bring. The new statutory college insolvency scheme can be traced back to early 2016, when the Government were overseeing the rationalisation of the sector through the national area review programme. No clear rules currently exist as to what happens should a college run out of money and the Government did not effectively indemnify it. When colleges were taken out of local government in 1992, a new type of statutory corporation was created to run them but no rules were ever established to apply in circumstances where colleges simply ran out of money. Instead, to protect a college’s students, courses and assets, central government—through a succession of funding agencies—has ended up being the funder of last resort. This has meant that the banks have always been paid in full or been able to replace an old loan with a new one.

The Government’s post-16 area review was designed to put all colleges on a sustainable financial footing and has resulted in more than 50 mergers since 2015, the majority of which have been self-funded by colleges. The process of restructuring colleges has proved to be more complicated than was anticipated when the area reviews started. Colleges have found that it takes more time than expected to satisfy their banks, resolve pension issues and navigate rules devised by Ofsted, the Home Office and the Education and Skills Funding Agency. We understand that the Treasury insisted on a college insolvency regime as a price for providing its restructuring loans, and this is what was legislated for in the Technical and Further Education Act. These regulations will put this into effect and are intended to provide clarity about what happens when a college gets into severe financial problems. The law creates a special administration regime for colleges akin to that put in place in recent years for energy companies, train operating companies and housing associations—strange comparators, noble Lords may feel. But it is to be welcomed that the special administrator will have duties to protect learners, as well as creditors, in a situation where a college has run out of money.

The new college insolvency regime has been described as a last resort rather than a normal route to secure change. Once the new arrangements come into force, there will be several lines of control in place: the governing bodies will of course have a duty to ensure the solvency and viability of colleges; the ESFA will have financial oversight; the Further Education Commissioner will intervene where the college has a notice to improve; and there is the independent business review, a new pre-statutory process that will apply for colleges in severe financial distress. Only if and when all the above fail to resolve matters will the new college insolvency regime apply.

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[Lord Storey (LD)]

My Lords, I preface my remarks by saying that we value further education. It will go through a renaissance and the need for vocational courses, skills development and apprenticeships will help it to blossom. This instrument is technical but it is absolutely right that we should agree it.

However, I have a number of concerns. We have had the area reviews, of course, but why do we allow a further education or sixth-form college to become insolvent? One would think that further down the line we would take strong and robust action to ensure that that does not happen. If a college closes down the effect on the local community and economy can be devastating. If we allowed a further education college in, say, Northumberland to close down because we had not kept our finger on the pulse, imagine the effect that that would have in a predominantly rural area.

It is important that we understand the mechanisms for ensuring that this does not happen. I see in the document that 37 further education colleges published notices to improve financial health. What do the Government do to make sure that that support is given?

I agree with the comments of the noble Lord, Lord Watson, about cuts, but it is not always about cuts; it is about management as well. An institution might not have all the resources it needs but it might be so well managed that it thrives nevertheless. It is about the management of the college as well as its finances.

I have three further questions. First, the Minister said that insolvency will not always mean closure. Will he expand on that and say what other actions can be taken? Secondly, do these regulations apply to university technical colleges? Thirdly, if we want to create the level playing that the Minister talked about, should we not ensure that all sixth-form colleges are treated equally and that those that have to pay VAT will no longer have to do so? Will he perhaps explain why sixth-form colleges that are not in a multi-academy trust have to pay VAT?

[Lord Agnew of Oulton]

My Lords, I thank noble Lords for the interesting points they have raised. There have also been a number of questions which I will certainly try to address.

I say to the noble Lord, Lord Watson, that we are adamant that this provision is for exceptional circumstances. I made that clear in my opening comments. In answer to noble Lords who raised questions about our commitment to this sector, it might be worth summarising the extent of that commitment. In the current academic year, 2018-2019, we expect to spend some £7 billion, which includes apprenticeships. That gives a sense of the proportion of our public spending that we are putting into this age group.

I can reassure all noble Lords that this instrument is designed as an exceptional mechanism. The main reason for it is that under traditional insolvency arrangements, the lenders take control of the process. The provisions in these regulations make sure that learners are given more priority. That is the overarching principle of why this is being done.

On the specific question that the noble Lord, Lord Watson, asked about how the various bodies involved in the sector would interact with one another, we are still developing intervention systems so that we can respond effectively to the early signals of poor financial health to focus on preventing colleges from getting into positions of insolvency. This allows the FE commissioner and his team to go into colleges at an early stage, work with principals and governors and share best practice on better financial management to help college boards develop sustainable plans for financial resilience. College boards may need to make tough decisions to make to become more resilient. We will rely on their engaging with us early on, as soon as they know there is a problem. That goes somewhat to the point that the noble Lord, Lord Storey, made about the quality of management and governance. That is very much what we are pushing for, to ensure that when the canary in the coalmine sings, it is listened to and early action is taken.

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[Baroness Garden of Frognal]

There is no objection to the fact that young people are helped by being able to read, write and add up. The point is that GCSEs are very academically focused and the content of those syllabuses is completely inappropriate for many people who have technical skills and could happily do a functional test paper but not the academic papers of GCSE; it is the GCSE exam that is the bugbear, not the fact that people need to be able to read, write and add up.

[Lord Agnew of Oulton (Con)]

I will certainly take the noble Baroness’s views back to the department and reiterate them; I understand exactly what she is staying. She also raised a question about providing guidance to governors. We are committed to providing clear guidance, particularly on their duties and liabilities under insolvency law. The general College Governance guide, last published in 2014, will be updated. Both sets of guidance have been drafted and are being developed with the stakeholders—the Insolvency Service, the Association of Colleges and the Sixth Form Colleges Association—ready for publication in, we hope, the next few weeks.

The noble Lord, Lord Jones, asked whether I have any specific examples of colleges that have become insolvent. The short answer is no, as they have so far resolved their issues. In 2016 we created the restructuring facility, a fund from which some £330 million has been drawn across the sector. That has been used specifically to help them carry out the restructurings and some of the mergers to which other noble Lords referred, so there has been a period of consolidation over the last two years.

The noble Lord also asked about sixth-form colleges. There is a provision—this also addresses the point made by the noble Baroness, Lady Garden—for sixth-form colleges to convert to academy status. If they do that, they get the benefit of VAT recovery. The question was: why cannot everybody do that? The reason is that it is a complicated process. It is an option that we have offered to sixth-form colleges but not all of them have taken it up.

[Lord Storey (LD)]

There are all sorts of reasons. If a sixth-form college chooses not to become an academy or part of a multi-academy trust, it is penalised by having to pay VAT; but if it chooses to go down that route, it gets the reward of not having to pay VAT. Is that what the Minister is saying?

[Lord Agnew of Oulton]

That is, in essence, correct. However, one of the advantages of the FE sector is that colleges are allowed to borrow money commercially. If that is a route they want to take or have taken, that can be a barrier to conversion to academy status.

The noble Baroness, Lady Garden, asked about the role of private providers in subcontracting. These regulations are specifically designed simply for the further education sector, not for independent subcontractors. If a further education college were to become insolvent, a subcontractor could become one of the creditors.

I hope I have answered all the questions that have been raised.

[Lord Storey]

There was the question of university technical colleges.

[Lord Agnew of Oulton]

These regulations do not apply to university technical colleges. A UTC is framed under the academies legislation and has a funding agreement in the same way as an academy has, but UTCs are a separate legal entity.

As I have outlined, these regulations make necessary modifications to insolvency law so that it effectively applies to FE bodies and can bring the further education insolvency regime into effect. Cases of insolvency are rare and will continue to be so, but we cannot afford to be complacent. It is essential that this legislation is put in place for the FE sector to provide legal certainty and, most importantly, to ensure that learners are protected in the event of financial failure.

Motion agreed.

Greater Manchester Combined Authority (Adult Education Functions) Order 2018

Lord Agnew of Oulton Excerpts

Wednesday 24th October 2018 Grand Committee

Moved by

[Lord Agnew of Oulton]

That the Grand Committee do consider the Greater Manchester Combined Authority (Adult Education Functions) Order 2018, the Liverpool City Region Combined Authority (Adult Education Functions) Order 2018, the Cambridgeshire and Peterborough Combined Authority (Adult Education Functions) Order 2018, the Tees Valley Combined Authority (Adult Education Functions) Order 2018, the West Midlands Combined Authority (Adult Education Functions) Order 2018, and the West of England Combined Authority (Adult Education Functions) Order 2018.

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, these six orders, if approved and made, will provide for the transfer of certain adult education functions and the associated adult education budget—the AEB—to the mayoral combined authorities. This provides an opportunity for them to help their residents to fulfil their potential in life and contribute to the growth of the region. As noble Lords will be aware, in 2015 and 2016, through a series of devolution arrangements agreed between the Government and the mayoral combined authorities, we made the commitment fully to devolve the AEB to specified mayoral combined authorities. These orders will deliver on this commitment.

These orders are made under the Local Democracy, Economic Development and Construction Act 2009. They will transfer certain adult education functions of the Secretary of State, as set out in the Apprenticeships, Skills, Children and Learning Act 2009, to the mayoral combined authorities in relation to the area of each specified mayoral combined authority for the academic year 2019-20 and thereafter. This transfer does not include the functions in so far as they relate to apprenticeships or those subject to adult detention.

In the 2015 spending review, government made available £1.5 billion annually until 2020 for the adult education budget. Across England, this budget is supporting adults with the skills and learning they need to equip them for work, an apprenticeship or further learning. These facilities provide an integral stepping stone, particularly for disadvantaged adult learners.

In 2016-17, the AEB supported adults to study English, maths and courses of English for speakers of other languages, full level 2 or 3 qualifications and a wide range of community learning provision. Devolution will mean that mayoral combined authorities are able directly to shape the adult education provision available to their residents. This means that, from the academic year 2019-20, the provision can be more focused around local area need.

We are currently undertaking a wide-ranging programme of skills funding reforms across areas such as T-levels and apprenticeships. Post-16 education plays a crucial part in supporting future economic growth. In leaving the EU, it is important that our homegrown workforce is skilled and able to make the most of the new opportunities that arise. Devolution of the relevant functions and the associated AEB forms a key part of these reforms. Alongside devolution, the department is opening dialogue with mayoral combined authorities and other sectors on how skills provision and reforms can best be shaped to fit the needs of local areas.

These orders will transfer certain adult education functions of the Secretary of State in the Apprenticeships, Skills, Children and Learning Act 2009 to the mayoral combined authority in relation to its area. They will enable the transfer of that relevant part of the AEB to the mayoral combined authority. In particular, the following functions will be exercisable by the mayoral combined authority instead of by the Secretary of State in relation to its area: Section 86, which relates to education and training for persons aged 19 or over; Section 87, which relates to learning aims for such persons and the provision of facilities; and Section 88, which relates to the payment of tuition fees for such persons.

Conditions are set in relation to the transferred functions—in particular, that the mayoral combined authority must have regard to guidance issued by the Secretary of State and must adopt eligibility rules in accordance with any direction of the Secretary of State. The Department for Education will transfer the relevant part of the adult education budget to the mayoral combined authorities to undertake the functions. It will be the responsibility of each area to manage its overall AEB allocation efficiently and effectively to ensure that it delivers for its local residents. The department is assisting the mayoral combined authorities to be ready for taking on the functions and has provided implementation funding to each of them to prepare effectively.

From the 2019-20 academic year, the mayoral combined authorities will be responsible for providing funding for statutory entitlements for eligible learners in maths and English up to and including level 2, first full level 2 for learners aged 19 to 23, first full level 3 qualifications for learners aged 19 to 23, and the forthcoming digital skills entitlement. We talk about the northern powerhouse and the Midlands engine among others. Skills are an essential driver for economic growth in all our regions.

We are already seeing the mayoral combined authorities make a real difference locally. For example, Tees Valley Combined Authority has implemented the Tees Valley Routes to Work pilot. This is an innovative pilot that has a total fund of £7.5 million, with £6 million from the Department for Work and Pensions and £1.5 million from the combined authority cabinet. It will run until 31 March 2021. Routes to Work will support at least 2,500 individuals who are long-term unemployed or who have significant barriers to employment. The pilot aims to move at least 375 individuals, 15% of the cohort, into sustainable employment. It aims to work with those most disengaged from the labour market and support them in engaging, identifying and addressing any potential barriers that they may face in gaining employment.

In Greater Manchester the mayoral combined authority has implemented the Working Well programme. This stream of work responds to one of its strategic aims of reducing long-term unemployment and helping more residents into sustained employment. The £52 million devolved programme offers intensive and tailored support to individuals who are out of work due to poor health or disability and the long-term unemployed, to help to address their barriers to employment. The programme, which takes referrals from Jobcentre Plus, will support around 22,000 individuals over its five-year life. In the first six months more than 1,700 residents had started to receive support.

Those examples give a picture of the specific interventions currently taking place at a local level and illustrate the positive impacts that devolution can have. Devolution gives all mayoral combined authorities the opportunity to address the skills challenges that they face and enhance economic growth in their areas. The scale of the challenges faced is both significant and different dependent on region. For example, there are currently 41,000 Greater Manchester Combined Authority residents with no qualifications. There are significant variations between residents’ skills levels across the districts. West Midlands Combined Authority currently has the lowest employment rate of any of any mayoral combined authority—72.3%, against a national average of 78.4—whereas Liverpool City Region Combined Authority has one of the highest rates of economically inactive residents of any combined authority area. Similarly, despite employment levels rising at a rate faster than the national average, Tees Valley Combined Authority still has higher levels of claimant unemployment compared to national averages, with a Tees Valley average of 4.2% compared to 2.2% nationally. Cambridgeshire, Peterborough and West of England combined authorities have skills shortages and hard-to-fill vacancies that are constraining local businesses. These examples show that each area has specific challenges. These can be addressed through the devolved AEB, and the orders give the mayoral combined authorities the opportunity to address specific regional problems.

The orders will enable mayoral combined authorities to support their residents into good jobs with opportunities for people to progress and develop; improve the earnings potential of their low-paid, low-skilled workers; and help to deliver a thriving and dynamic economy. Without these orders, the mayoral combined authorities will not have the ability to address these challenges and bring greater prosperity to their regions. I beg to move that these orders be approved.

[Lord Watson of Invergowrie (Lab)]

My Lords, I thank the Minister for his introduction. No doubt he will share my relief that in your Lordships’ House we are considering all six of these orders together, not following the procedure adopted in another place, where they required three sittings over a period of eight days. I think we can do things more efficiently.

The devolution of powers and funding for adult education that the orders introduce is welcome, as much of the most effective adult education provision is delivered locally in line with the needs of local communities. The Explanatory Memorandum characterises the transfer of functions as giving local areas a prominent role in managing and shaping their own economic prosperity. Who could argue against that? But—there is almost always a but—the transition from national funding to devolved funding may have unintended consequences for some national providers if it disrupts their existing local provision. A long-established national charity, the Workers’ Educational Association, is one such provider that may be adversely affected. I declare an interest as a former employee of the WEA. I shall say more about that organisation in due course, but before doing so it is appropriate to put the effect of these instruments into context.

The Explanatory Memorandum also states:

“The transfer of the specified functions to the combined authorities will result in an associated transfer of funds to each combined authority to facilitate the exercise of those functions. This will take the form of a proportion of the overall adult education budget moving from the Department for Education to the specified combined authority”.


The key question mark over the future delivery of adult education concerns how much funding will transfer and how that will affect the ability of the combined authorities to deliver a full provision. The Minister delivered an upbeat assessment of what the combined authorities will achieve through the powers contained in these orders, but the current experiences of providers are not so upbeat.

The report published last month by the Institute for Fiscal Studies, which the Minister and his officials will be aware of, found that between 2004 and 2016 the number of adult learners fell from 4 million to 2.2 million. That alarming 45% drop means that apprenticeships now account for over one-third of total adult education funding, as opposed to 13% in 2010. That may be good news for those fortunate enough to work for an employer that is part of the apprenticeship programme, but of course millions more people never get the chance to undertake an apprenticeship, such as those working part-time, in the gig economy, for a microbusiness or on zero-hours contracts.

For the majority of adult learners, the IFS report painted a rather bleak picture. The numbers show that there are fewer evening classes and opportunities for people to learn, whether it be to improve literacy and numeracy, to update technical skills that might help get a job or a promotion, or to take GCSEs and A-levels to help to access higher education. Each year there are 1.8 million fewer adults able to improve their life chances through education. This is not the place for discussing the Open University, but in recent debates in your Lordships’ House I have highlighted the serious decrease in adult part-time education on Open University courses since the tripling of tuition fees in 2012, and that fits with the pattern across adult education.

Of course, cuts in funding which have the inevitable consequence of reducing the numbers participating in adult learning have a direct impact on the economy. One of the obvious benefits of adult education is helping people, as the Minister said, to equip themselves with the skills that employers need now and will need even more in the future. This is a pressing issue, with fewer EU nationals being allowed to bring their skills to the UK. In the context of our leaving the EU, opportunities for upskilling and reskilling should surely be going up not down, yet figures on enrolments in key areas of the labour market are worrying. Enrolments in health and social care courses dropped by a third between 2006 and 2016. The reduction was of a similar percentage in both construction and engineering. If the Minister, his department and the Government are not concerned by these figures, I think we should be told why.

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[Baroness Pinnock (LD)]

My Lords, I welcome the orders that will devolve elements of the adult education budget that are currently held centrally to the mayoral combined authorities. I always welcome devolving budgets to authorities, either combined or local. We can have local decisions to help local people, which is much better than having national decisions made by people in London who, in my experience, know little about the folk I represent in Yorkshire. One of the factors that is holding back business development, business expansion, economic development and GVA in many regions, and in the north in particular, is a lack of appropriate skills and the low levels of skills in the population compared with the more prosperous parts of the country.

I want to highlight four issues, broadly supporting what we have before us today. The first, which the noble Lord, Lord Watson, also raised, is that of funding. The question should be: how much funding are each of the combined authorities going to be allocated, and how does this allocation of additional funding fit in with the significant reduction of government funding to further education colleges, where much of the skills provision is delivered? It does not bode well for the adult education elements of the budget. I know from my own experience in Yorkshire that there is a huge demand for construction workers, yet the colleges delivering those skills are finding it difficult to do so because of the funding squeeze on them. There is also a danger that we will end up with a very fragmented adult skills funding mechanism and delivery. This will not help achieve what the Government have set out in what the noble Lord, Lord Agnew, has said; namely, enabling those areas of the country with combined authorities to really support skills being developed by people who left school without the appropriate skills for the economy and for their own well-being.

The second point I want to make is about one of the phrases in the document; it talks about the challenge of encouraging more training and education. Obviously, as someone who has spent a lifetime in education, I totally support that. What is interesting is that the Government have had rather limited success in addressing the issue of what are crudely called NEETs—those who are not in employment, education or training. We ought to focus much more attention on that group of people, who, as we have heard, will need those skills for their lifetime of employment, and the country needs them to have skills. I want to understand, from that element of what is before us, how that is going to be measured. We are talking about it being important to encourage them, so how are the Government and the combined authorities going to measure that?

The third issue that I want to raise is the business of consultation, which the noble Lord, Lord Watson, has raised in a different way. All the documents say there is no need for additional consultation because it was done three or four years ago for the original orders for the combined authorities; adult education and skills were in all those original functions for the combined authorities, and this is just giving the funding to allow that to happen. However, now that we have a specific defined allocation and devolution of a function and funding, a consultation ought to take place in those combined authority areas as to how that should be carried out. There are institutions that will be affected one way or another—one in particular, as the noble Lord, Lord Watson, has pointed out—and I think there ought to be consultation among providers in those areas to listen to any issues that they raise. I am disappointed that in here it says that no consultation will be necessary.

The fourth issue that I want to raise is accountability. Right from the start of combined authorities, I have been concerned about the lack of accountability for the devolved functions and the funding that has been made available. The governance model that the Government have decreed is very light on accountability. Perhaps the Minister will be able to describe how the combined authorities will be held accountable to the Government for the delivery of the function that is being devolved, and how he anticipates the constituent local authorities being able to hold the combined authority decision-makers to account in a public way. I hope he will not tell me that they all have scrutiny panels or committees, because I do not think they have the necessary powers to really hold the combined authorities to account for the functions that they fulfil and the public money that they spend.

In summary, I support what is being proposed here. I know from the examples that have been given that the combined authorities will set up different models to fit the needs of the people in the regions, and that is positive. However, there are some issues that we need to be concerned about: consultation is one, accountability another, and the third is the fragmentation of funding. I look forward to the Minister’s response.

[Lord Agnew of Oulton]

I thank noble Lords for their comments and questions. I thank the noble Lord, Lord Watson, and the noble Baroness, Lady Pinnock, for their broad although perhaps qualified support. I will try to address the various questions that they have both raised.

To start with the funding question, as that is something that both speakers raised, the overall budget, as I mentioned in my introductory words, is £1.5 billion a year, which was set for this current spending review. In aggregate, the amount of money being devolved to these combined authorities—including the Greater London Authority, which has a slightly different legal structure, although we have issued a delegated letter to that authority to give it the same or very similar powers—is about £750 million. I cannot speak for beyond the spending review, but I can certainly reassure noble Lords that this is an area of huge focus of this Government. We are very committed to supporting adult learners into improving their skills and their future life chances.

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[Lord Agnew of Oulton]

My Lords, I shall finish off on the WEA. Devolution gives the WEA an opportunity to work with the mayoral authorities and shape the ways in which they can contribute to meeting skills needs locally so that people of all ages are given those opportunities. It is vital that providers such as the WEA make contact with the MCAs to support them.

[Lord Watson of Invergowrie]

The WEA provides the contacts for these opportunities and possibilities. At the moment it is delivering adult education courses but it may not be able to do so in the future. There is not going to be a transitional period during which it can adjust. As I say, it is discussing these issues with the authorities but it may not always be successful, and that is the problem. There could then be a significant reduction in what the WEA is able to provide.

[Lord Agnew of Oulton]

What I can offer the noble Lord is that if he does not feel that the mayoral authorities are engaging constructively with the WEA, he should write to me and I will take the matter on. When the noble Lord, Lord Bird, wrote to me in April, I passed the letter on to the Minister, my right honourable friend Anne Milton, who wrote to the noble Lord and offered to meet him. I reassure the noble Lord, Lord Watson, that I believe such providers to be a very important part of the further education landscape and we certainly do not want to see them put out in the cold.

To address the questions asked by the noble Baroness, Lady Pinnock, on NEETs, or that category of vulnerable young adults, we are trying to help them through further studies in GCSE English and maths. In each case, more than 500,000 adult learners are studying maths and English to get them on to a platform that will enable them to go on and acquire the broader skills that are needed. We already require information about further education to be submitted to the DfE and we will continue to complete the individualised learner records in respect of provision delivered to learners resident in authority areas. This will continue to feed through into the national statistics publications. For transparency, the national statistics publications will include provision delivered to residents of the authority areas.

On accountability, we have put in place a number of measures to deal with the issues raised. There will be a robust governance arrangement between the department, the Education and Skills Funding Agency and the MCAs to govern the transitional year. As part of these arrangements the department is working with the MCAs to monitor and evaluate the performance of AEB-funded provision. This is assisting the MCAs in determining their commissioning and provision strategy when the budget is devolved from 2019-20 onwards. The Secretary of State has issued guidance on the approach an MCA should take to commissioning adult education. This includes guidance on how the approach should align to the existing adult education funding milestones which a provider operates under when commissioning. They have statutory requirements, which gives the department powers to intervene in the event of a failure to deliver decent provision.

Introducing these orders now will allow the mayoral combined authorities the opportunity to work with providers to tailor adult further education provision in preparation for the academic year 2019-20. This will give their residents the chance to reach their potential, improve their earnings and gain progression in their jobs. It will allow the skills system to deliver in responsive ways to sustain a flexible labour market. I commend these orders to the Committee.

Motion agreed.

Schools: Music Education

Lord Agnew of Oulton Excerpts

Thursday 18th October 2018 Lords Chamber

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, I am grateful to the noble Lord, Lord Black, for securing this important debate. I also thank colleagues for their contributions. There was much in my noble friend Lord Black’s comments on the benefits of education that I strongly agreed with.

Music is statutory in the national curriculum, so every child in a maintained school must study the subject from the ages of five to 14. Between 2016 and 2020, we are providing £300 million of funding for music education hubs to ensure that all pupils have the opportunity to learn an instrument, sing and perform regularly, and have access to clear routes of progression.

Many noble Lords, including the noble Lords, Lord Clement-Jones and Lord Watson, and my noble friend Lady Redfern, mentioned the national plan. I can confirm that we will announce our plans for the next phase of this within the next couple of months. I say to those noble Lords who may be unware of it that the Government’s priorities for music education are set out in The Importance of Music: A National Plan for Music Education. It sets out our belief that children from all backgrounds and every part of England should have the opportunity to learn a musical instrument, to make music with others, to learn to sing, and to progress to the next level of achievement.

We have set up a network of 120 music education hubs to support schools in providing these opportunities. The noble Lord, Lord Lipsey, spoke about music in Wales, but that is a devolved matter. He was also concerned that children in England should have the opportunity to learn to work together in groups. That is exactly what the music hubs are trying to do, working with local authorities, schools, arts organisations and community and voluntary organisations. Between 2016 and 2020 music hubs will receive £300 million to work with all state-funded schools in England, including academies and free schools.

In primary schools, the national curriculum aims to ensure that all pupils perform, listen to, review and evaluate music across a range of historical periods, genres, styles and traditions, including the works of the great composers and musicians. At key stage 1 pupils are taught to use their voices expressively and creatively by singing songs and speaking chants and rhymes, as well as to experiment with, create, select and combine sounds using interrelated dimensions of music. At key stage 2 pupils are taught to sing and play musically with increasing confidence and control. They should develop an understanding of musical composition, organising and manipulating ideas within musical structures and reproducing sounds from aural memory. At this stage pupils will also begin to develop an understanding of the history of music.

To address the concern expressed by the noble Earl, Lord Clancarty, that music is being sidelined in primary schools, with less time being spent on the subject, in the 2016 Omnibus survey, primary school classroom teachers were asked about the time they spent teaching different subjects. The survey showed the time spent on humanities to be broadly similar to that spent on music and the arts. I would also like to put to bed the myth that says academies can opt out of teaching music. This is simply not correct. All schools, including academies and free schools, must provide a broad and balanced curriculum.

Prompted by the noble Lord, Lord Storey, I will offer a couple of examples. Yesterday I corresponded with the chief executive of the Outwood Grange Academies Trust in the north. He said:

“I have specialist teachers working in 10 primaries delivering music, and we use the peripatetic service. I have a specialist supernumerary director who supports music across the whole trust. We annually have students who perform in the Royal Albert Hall. We also book regional theatres for our students to perform in. We are promoting music heavily and have, for example, a youth brass band in our Barnsley school, Outwood Shafton. It is next to Grimethorpe, which has a famous colliery band. We have 206 entries to do music this year”.


I corresponded with the chief executive of the Burnt Mill Academy Trust near Cambridge. She said:

“We get all children to start an instrument in year 7; all pupil premium children in primary. At the end of year 9, they can choose to continue or not. This has a massive impact on self-esteem, resilience and music outcomes”.


I reassure the noble Baroness, Lady McIntosh, the noble Earl, Lord Clancarty, and the noble Lords, Lord Aberdare and Lord Clement-Jones, that Ofsted does consider music education as part of a school’s broad and balanced curriculum—one that promotes the spiritual, moral, cultural, mental and physical development of all pupils. The noble Baroness, Lady McIntosh, is correct that Ofsted is consulting on its new framework, and we will have to leave it to Ofsted to develop it. The noble Earl, Lord Clancarty, asked about the relationship between the DfE and DCMS. I am able to say that we are in touch with each other. That department carried out a survey in 2016-17 which showed that 97% of children aged five to 15 participated in the arts in general.

When talking about music education in primary schools, I would like to share a splendid example that came to me via the music education hub in Gloucestershire. One of the hub’s partner organisations, the Music Works, delivers whole-class ensemble teaching on iPads. According to one teacher:

“The year 6 children from Chesterton Primary School, Cirencester, had a wonderful time combining music and technology. Even our most reluctant musicians are finding out about time signatures, chords and composition as they enjoyed exploring GarageBand”—


that is not a genre I am familiar with—

“on the iPad”.

I appreciate the kind words of the noble Lord, Lord Storey, although he made me feel like a young subaltern at Balaclava with Lord Raglan telling me to charge—but I will now address the EBacc issue. I reassure noble Lords that the EBacc is not responsible for forcing music out of the curriculum. These concerns were raised by nearly every speaker: the noble Lords, Lord Wallace, Lord Aberdare and Lord Clement-Jones, and my noble friends Lady Bloomfield and Lord Black. First, the data shows that the percentage of time spent by secondary school teachers teaching music remained broadly stable between 2010 and 2017. This data is drawn from the school workforce survey, which is a statutory survey, not a limited poll.

Secondly, there is no evidence that arts subjects, including music, have declined as a result of the introduction of the EBacc. In response to an Oral Question yesterday, I said that there were 31,000 entries for GCSE music in England in 2017. That was fewer entries than seven years ago because the cohort was smaller. The percentage is the key figure, and it has remained broadly stable at around 7%.

The noble Earl, Lord Clancarty, spoke about the rise in the number of pupils studying geography and history. He is right: it went up from 48% in 2009-10 to 76% in 2016-17. I believe this is a matter for great celebration, and it very much plays into the point made by the noble Baroness, Lady McIntosh, about facilitating subjects. One of the main reasons why we pushed for this was to help those from disadvantaged backgrounds get a decent chance of going to a good university. I take on board the noble Baroness’s challenge—that should be taken to the universities. I accept that music is a very challenging subject and it should get recognition, but that fight should be taken to that sector. In 2018, 23% of children in the independent sector participated in art and design GCSE, compared with 27% in the state sector. The best schools are combining a high-quality cultural education with excellence in core academic subjects, and we are committed to ensuring that all pupils have access to both.

Some noble Lords raised careers and secondary schools, and GCSE study leads me on to the subject of careers. The Government want to encourage young people to consider careers in music and have published a comprehensive careers strategy, building on the improvements we have already made to the careers system. We are investing more than £70 million this year to support young people and adults to get high-quality careers provision. Of the 330 new apprenticeship standards approved so far, 28 have been made available for the creative and digital industries, with a further 33 in development.

The noble Lord, Lord Watson, asked about the recent pay rises. We have committed to provide £500 million for an increase in pay for classroom teachers on the main pay scale of up to 3.5%. It is being paid directly to schools on a per-pupil basis, that being the quickest and simplest way to get the money into the system. The number of teachers centrally employed by councils represents only around 1% of the teaching workforce. We are in discussions with local authorities about how this issue is dealt with.

The noble Lord, Lord Watson, challenged me on what I think he described as an arts pupil premium. It is important to put on the record that we have created a pupil premium which has delivered more than £12 billion into the schools sector over the past five or six years and is aimed at those in areas of disadvantage. We are providing £300 million for a network of music education hubs. To break that down, we have given £400,000 to Music for Youth to provide opportunities for young people and families who might otherwise not have access to perform at or attend regional and national festivals. More than 10,000 pupils attended Music for Youth Proms primary concerts in London and Norwich last week. The festival series reaches its climax next month when around 3,000 young people will perform at the Music for Youth Proms concerts at the Royal Albert Hall. Department for Education funding helps to support the festival series, including supporting those participating or attending for the first time.

To address my noble friend Lord Lingfield’s concern about orchestras, we have a £2 million fund for national youth music organisations such as the National Youth Orchestra, the National Youth Choirs of Great Britain and the National Youth Jazz Collective. This helps them to continue their excellent work and ensures that they remain able to provide bursaries to those from disadvantaged families who would otherwise be unable to take up the opportunities.

The noble Lord, Lord Watson, raised the issue of funding for the music and dance scheme. The actual figure is £118 million for exceptionally talented young musicians and dancers, which is not quite the sum that was mentioned.

[Lord Watson of Invergowrie]

The issue I raised concerning the music and dance scheme was not the total funding but the fact that it was set up to assist students from disadvantaged families, yet many of its students are from families that could certainly not be described in that way. Can the Minister clarify why that is happening?

[Lord Agnew of Oulton]

My Lords, I am not familiar with the exact mechanics of the scheme but I will write to the noble Lord to clarify that.

My noble friend Lady Bloomfield spoke about In Harmony, a scheme that is running some excellent programmes in Nottingham and is working with 26 primary schools. Last month, it ran a music camp for children in need of extra support to move into the after-school band. In March next year the programme is organising an immersive play-along concert with the Robin Hood Youth Orchestra. Impressive work is happening too in Liverpool. Next year the Liverpool In Harmony programme is celebrating its 10th anniversary. In March the Royal Liverpool Philharmonic Opera is holding an In Harmony benefit concert, there is a special children’s orchestral production at Liverpool Philharmonic Hall and further Liverpool In Harmony concerts are planned in Leeds and Newcastle.

My noble friend Lord Lexden, the noble Lords, Lord Aberdare and Lord Wallace, and the right reverend prelate the Bishop of Chichester all spoke about independent schools. As my noble friend rightly said, we have recently agreed a joint understanding with the Independent Schools Council. This is the first of its kind and it sets out the commitment that independent schools are making to support disadvantaged pupils, including looked-after children, and to work with others across the sector on things such as the better targeting of bursaries. I am aware of an excellent drama and music production organised by the King’s College School in Wimbledon in partnership with Ricards Lodge High School, Coombe high school, St Mark’s Academy and Cricket Green special school. Interestingly, the statistics for those studying music GCSE are broadly the same in the independent sector and the state sector: about 6% in the state sector and 7% in the private.

We held a round-table meeting in Downing Street a few months ago with independent schools as part of something that I am very committed to: getting them to collaborate more with the state sector. At the round table, I asked the question: “What more should be happening?”, and all the heads from the independent schools said, “We should have state school heads in this meeting next time”. They are passionately committed to supporting the state sector in the promotion of good music, among other things.

My noble friend Lady Bloomfield referred to the quality of teacher training. In December last year we launched a consultation on strengthening qualified teachers’ status and improving career progression. This will happen for all subjects but I do not yet have specific details on music.

My noble friend Lord Lingfield may be interested to know of the Classical 100, which was mentioned by the noble Lord, Lord Aberdare. Classical 100 was launched in 2016 and is a free online resource that provides classical music to primary schools. It was developed by experts in music education and the Associated Board of the Royal Schools of Music, Classic FM and Decca. Over 4,000 schools have signed up to this resource, with 6,300 teachers registered as users. The 100 pieces were selected to encourage people to explore, discover and listen to a range of styles over 10 centuries, including JS Bach, Beethoven, Brahms, Mozart and Tchaikovsky. The online site offers schools a range of flexible resources to support teachers and can be used not only in music lessons but as part of school assemblies, plays and dance and drama studies. My noble friend Lord Borwick is right: technology is emerging to offer different routes into music and the teaching of music, and the Classical 100 is a good example of that.

Let me say a few words about the Music for Youth Proms concerts taking place next month, from 5 to 7 November. The Proms is an annual event which takes place at the Royal Albert Hall and is a celebration of the entire Music for Youth season, showcasing high-quality performances from some of the UK’s most creative, innovative and energetic young musicians. The DfE funds Music for Youth, and each night, more than 1,000 different young musicians take part in a concert which sees full-scale orchestras showcased side by side with some of the brightest young jazz bands, chamber groups, rock bands and choirs from across the UK. This is a tremendous experience for young people, giving them an opportunity to perform in a world-renowned venue alongside their peers.

I close by reassuring your Lordships that the Government absolutely understand the value of music. I cannot put it more personally than this. My own father studied music at university just before the outbreak of the Second World War. He volunteered to fight before graduating but it remained an important part of his life. A few years earlier, at school, he used singing to overcome a debilitating stammer. I understand the power of music.

I again thank my noble friend Lord Black for tabling this debate to give the Government a chance to put on record all that is being delivered in music. I take note of all noble Lords’ concerns and will ensure that the Government bear in mind all of today’s contributions.

Education: GCSE Music

Lord Agnew of Oulton Excerpts

Wednesday 17th October 2018 Lords Chamber

[Lord Black of Brentwood (Con)]

My Lords, I beg leave to ask the Question standing in my name on the Order Paper, and I declare an interest in the subject as chairman of the Royal College of Music.

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, there were 31,000 entries to music GCSE in England this year, and the proportion of pupils taking music GCSE between 2010 and 2018 has remained broadly stable. Music is compulsory in the curriculum for local authority maintained schools for key stages 1 to 3, and pupils have an entitlement to study an arts subject, including music, at key stage 4 if they wish. We are investing more than £300 million up to 2020 in music education.

[Lord Black of Brentwood]

I thank my noble friend for that Answer, but he should be in no doubt that the situation of GCSE music in schools is very grave. The number of pupils completing it fell by 7% last year, which means a fall of 23% since 2010, with one in five schools not offering it at all last year. This is undoubtedly the fault of the EBacc, which punishes arts subjects at the expense of sciences. Does my noble friend appreciate that this merciless decline is the start of a destructive downward spiral? As fewer pupils take GCSE even fewer then take A-level, and fewer still will go on to study music at a university or conservatoire, thereby threatening the long-term sustainability of music in our country. Is it not time thoroughly to overhaul the EBacc before irreparable damage is done to music education and it has become the privilege of the children of the rich rather than the fundamental right of all pupils?

[Lord Agnew of Oulton]

My Lords, there is no evidence that arts subjects have declined as a result of the introduction of the EBacc. Since the EBacc was announced in 2010 the proportion of young people taking at least one arts GCSE has fluctuated across the years, but has remained broadly stable. The best schools in the country combine a high-quality cultural education with excellence in core academic subjects. I reassure my noble friend of the importance, to my mind, of music to brain development, and I shall quote from a study on this; the education system needs to become more aware of it.

“Music’s pitch, rhythm, metre and timbre are processed in … the brain … Rhythm and pitch are primarily left brain hemisphere functions, while timbre and melody are processed primarily in the right hemisphere”.


Music is an integral part of our education, and so is EBacc.

[Baroness McIntosh of Hudnall (Lab)]

My Lords, I am not sure where the noble Lord gets his evidence from. I wonder whether he is aware of research, published just this week and launched in this House, jointly commissioned by the Royal Shakespeare Company and Tate, from Nottingham University. The unique feature of this research is that it talks to young people about their experience of arts and cultural education. One of the things that emerges from it is that they are clearly getting a strong message that, important as this is to them, it is not valued in the curriculum: consequently they are often discouraged from taking it up. He might, if he has time, listen to the recent appearance of the noble Lord, Lord Bird, on “Private Passions” to hear first-hand testimony of what an impact music can make on one person’s education, particularly someone who did not have a very good start in life. How much more evidence do the Government need before recognising that this is a serious issue not just for future professionals but for all students?

[Lord Agnew of Oulton]

To answer the noble Baroness’s first question, about where the research I am using comes from, an initial five-year study by the University of South Carolina showed that music instruction appears to accelerate brain development in young children. I entirely accept that, but let us also talk about the amount of time that is being devoted to the teaching of music in schools. Music as a percentage of teaching time in secondary schools has remained broadly stable since 2010: 2.4% in 2010 and 2.3% in 2017. I get that data—I am conscious of noble Lords saying that we are loose with our data—from the school workforce census, a survey of 76% of secondary teachers and 85% of secondary schools.

[Lord Wallace of Saltaire (LD)]

My Lords, I declare my interest as a trustee of a musical education charity which is overwhelmed by requests from schools and music hubs for us to collaborate with them because the number of teachers with training in music teaching is declining and is expected to decline further in the next two or three years. Do the Government accept that music is going to be pushed aside as an extra subject and is likely, in state schools, to be provided increasingly by volunteers and charitable bodies?

[Lord Agnew of Oulton]

My Lords, the vacancy rate for music teachers in schools is currently 0.6%, so I do not believe that there is a crisis. I am glad that the noble Lord raised music education hubs, which are supporting more than 650,000 children learning to play an instrument. More than 340,000 pupils took part regularly in area-based ensembles and choirs, of which more than 8% were eligible for pupil premium. Music is an important part of our system and the Government are supporting it.

[The Earl of Clancarty (CB)]

My Lords, despite what the Minister is saying and the replies he is giving, it is now very clear from a huge amount of evidence that the EBacc is harming not just music but all the arts, and design as well. Do the Government not think it time, if we are to retain some form of baccalaureate, to look at other models such as the Edge Foundation to enable the rounded and forward-looking education the Government say they believe in?

[Lord Agnew of Oulton]

My Lords, the EBacc was designed to get a good general education to as large a part of the population as possible, in particular those from disadvantaged areas. We all know that the cultural capital from those areas is much less than in people coming from the backgrounds of most in this Chamber. That is why we did it. There is room in the key stage 4 curriculum to add music if that is what schools decide to do. The average number of EBacc exams is seven—eight if you go to triple maths, but seven would be standard—and that leaves one slot for music if that is what a child decides to do.

[Viscount Bridgeman (Con)]

My Lords, does the Minister recognise the important contribution that cathedral choir schools play in the musical education of this country? They are the envy of many European musical countries, such as Germany and the Netherlands.

[Lord Agnew of Oulton]

My noble friend is absolutely right. To link this for a moment to EBacc, I believe that a sense of history and music come together. Many noble Lords who have listened to the “Miserere” will know that Mozart went to hear that in the Vatican aged 14, memorised it and took it back and published it for the outside world because the Vatican had chosen to keep it to itself. Beethoven wrote five piano concertos, the “Missa Solemnis” and his ninth symphony when he was totally deaf. That gives a very different understanding of music when you listen to it, so history and music stand together.

[Lord West of Spithead (Lab)]

My Lords, I declare an interest as a patron of the Docklands Sinfonia. I support what the noble Lord, Lord Wallace, said. This sinfonia, which is based in the East End, very often goes out to schools in the Tower Hamlets area because there are insufficient music teachers. This is wonderful and important to do because it stops people in gangs killing each other with knives. There is clearly something wrong. There is not enough chance to learn music at school if they are having to do this.

[Lord Agnew of Oulton]

I referred earlier to the percentage of teacher time allocated to music, so I do not think this is the problem. I accept there are challenges in areas of disadvantage, which is why we have launched the In Harmony programme. This is working in six of our most disadvantaged areas. We are already seeing quantitative and qualitative evidence to suggest that children’s musical enjoyment has improved through the involvement of In Harmony. It is popular among its participants and we will be carrying out a further evaluation next September to see if we can widen its scope.

Further Education: Teachers’ Pay

Lord Agnew of Oulton Excerpts

Tuesday 16th October 2018 Lords Chamber

[The Parliamentary Under-Secretary of State, Department for Education (Lord Agnew of Oulton) (Con)]

My Lords, all teachers are equally important to us. However, further education providers, including sixth-form colleges, are private sector institutions, independent of government. It is for individual FE employers to agree local pay structures, with unions, based on local needs. We are currently considering the efficiency and resilience of the FE sector, and assessing how far existing funding and regulatory structures meet the costs of delivering quality further education, ahead of the spending review.

[Baroness Garden of Frognal (LD)]

But, my Lords, the Government do have an input into this. This is Colleges Week and we should acknowledge the part which further education colleges play in education and English education, with apprenticeships, with further technical and academic qualifications, and with adult learning. They have been lumbered with the wretched GCSE and maths resits, which really are an abomination that the Government need to reconsider. Can the Minister say why, in the last 10 years, college funding has been cut by around 30% and the value of staff pay has fallen by 25%? Why has the recently ring-fenced teachers’ pay grant for schools not been extended to FE colleges? The Government after all do have a part to play in this.

[Lord Agnew of Oulton]

My Lords, to reiterate our acknowledgment of the great role FE colleges play, more than eight out of 10 are judged “good” or “outstanding” by Ofsted and, in the most recent data, 58% of pupils leaving go on to jobs and 22% go on into further learning. We absolutely recognise that. There are a couple of figures that might interest the noble Baroness. According to the ONS earnings data—which is, of course, only a survey—when accounting for inflation, FE teacher pay in England has remained stable since 2013. The other point—to pull on some of the broader strands that the noble Baroness mentioned—is that, by 2020, funding available to support adult FE participation, including the adult education budget, the 19-plus apprenticeship funding and advanced learner loans, is planned to be higher than at any time in our recent history.

[Baroness Blackstone (Ind Lab)]

My Lords, if FE colleges are doing such a good job—the Minister says that eight out of 10 of them are of high quality—why is it that Conservative Governments always fail to resource them adequately? Could he tell the House how he thinks the Government’s industrial strategy, which is dependent on a more skilled workforce, can be implemented while FE colleges are being decimated and their staff are leaving in droves?

[Lord Agnew of Oulton]

My Lords, we have given a number of different strands of support to the sector. We have a strategic college improvement fund to help colleges improve and build partnership capacity. We launched National Leaders of Further Education in October last year, empowering the best principals and senior leaders across FE to spread their expert knowledge. We have also created an FE strategic leadership programme, run by the Education and Training Foundation, a sector-owned body responsible for professional standards in the sector.

[Lord Bird (CB)]

My Lords, can we also include the Workers’ Educational Association in this discussion? It is doing profoundly interesting work in getting people out of long-term unemployment and into work and education. We would like to know what the Government’s plans are to support the Workers’ Educational Association because of the work that it does.

[Lord Agnew of Oulton]

My Lords, I do not have that information to hand, but I will write to the noble Lord with some further information.

[Lord Storey (LD)]

The Government are always, quite rightly, banging on about the importance of skills and skills training. We have heard from my noble friend that there has been a 30% cut in the FE budget and, in adult education, there has been a 61% cut. How on earth will we attract staff to develop the teaching to develop those skills? He mentioned—I was quite surprised about this—that the Government are looking at this sector. When can we expect to hear about this assessment of the sector?

[Lord Agnew of Oulton]

My Lords, we have reformed the high-needs funding and disadvantaged funding in this sector and we are now putting in some £520 million for disadvantaged students. As I mentioned earlier, we have the strand of support that I have already discussed. If we look at apprenticeships on their own, for example, we see that we have nearly doubled the amount of money going into apprenticeships since 2010. By 2020, it will be £2.45 billion, which is double the amount in 2010. The other thing we have done to try to support the sector is offer sixth-form colleges, where appropriate, the opportunity to academise, which gives them a VAT-recovery opportunity. So we are looking all the time at how we can support this important sector.

[Lord Watson of Invergowrie (Lab)]

My Lords, the Minister beggars belief when he says in response to my noble friend Lady Blackstone that various strands of additional funding have gone into further education colleges. The Institute for Fiscal Studies reported recently that funding per student in sixth-form colleges and further education colleges has fallen by 20% since 2010. How can the average funding per student in those sectors be £4,000, compared to more than double that for universities with their tuition fees? In Colleges Week, which the noble Baroness, Lady Garden, mentioned, is there any possibility of the Minister saying that the Government will properly fund the new cost pressures on further education colleges of pay and pensions increases to ensure that an age group essential to filling the skills gaps in the economy in future years will not be further disadvantaged?

[Lord Agnew of Oulton]

My Lords, we have already committed to holding baseline funding per pupil until the next spending review in 2020, and I can offer a couple more examples of where we are supporting the sector. We have the exceptional financial support scheme, the area reviews and the restructuring facility, with a fund of some £700 million that has been made available and is being drawn down upon to assist colleges in rationalising and improving—so I reiterate our strong support for this sector.

[Baroness Corston (Lab)]

My Lords, listening to questions from noble Lords to the Minister this afternoon makes me recall the report of the ad hoc Committee on Social Mobility on the transfer from school to work, which I had the privilege to chair. Every single point raised by noble Lords this afternoon was raised in our report. What is the point of us having committees if the Government do not take any notice?

[Lord Agnew of Oulton]

My Lords, we certainly do take notice. As I said in my opening Answer to the noble Baroness, we are looking at this whole area ahead of the next spending review.